The Council of Two were the rulers of Theed after the Invasion of Naboo.
History of the Council[]
After the Invasion of Naboo, Boss Nash and Queen Amidala knew that another invasion was indeed a possibility. So, they decided to unite the two races, Naboo and Gungan, under a ruling body.
This ruling body was invented by Yoda, who told them that the rulers of both races should have joined as a council.
Background[]
The idea for the Council of Two came from a line of Yoda's: "Always two there are. No more. No less."